Agenda Item # 11.2
For Council Meeting of: May 12, 2009
CITY OF SANTA ROSA
CITY COUNCIL
TO:
SUBJECT:
STAFF PRESENTER:
AGENDA ACTION:
MAYOR AND CITY COUNCIL
DOWNTOWN STATION AREA SPECIFIC PLAN
CONSISTENCY AMENDMENTS WORK PLAN
CLARE HARTMAN, SUPERVISING PLANNER
COMMUNITY DEVELOPMENT
MOTION(S)
ISSUE(S)
Should the City Council, by motion, accept the proposed the Downtown Station Area
Specific Plan (DSASP) Consistency Amendments and Rezonings Work Plan, and
authorize Community Development to conduct the work utilizing existing staff
resources?
BACKGROUND
1.
On October 9, 2007 the City Council adopted the Downtown Station Area
Specific Plan (DSASP). The adoption of the DSASP was the culmination of
several years of hard work by numerous elected officials, City Staff, and the
community at large, including many interested residents and neighborhood
groups. A primary objective of this plan is to increase the number of residents
and employees within walking distance (1/2 mile) of the Sonoma Marin Area Rail
Transit (SMART) station through the intensification of land uses in the plan area.
2.
The DSASP area encompasses approximately 1,560 parcels, totaling 650 acres,
and contains a diverse mix of land uses, development intensities, building heights
and circulation patterns. To preserve the character of these diverse
neighborhoods while guiding appropriate development, the DSASP is divided into
seven distinct Sub-Areas. Figure 4-1 of the DSASP illustrates the locations and
boundaries of the Sub-Areas, which include: Courthouse Square, Railroad
Square, Railroad Corridor, Park and Gardens, Imwalle Gardens, and Residential
and Historic Residential Sub-Areas.
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3.
Each of the seven Sub-Areas has unique characteristics that inform potential
development and land uses. The Land Use Framework sets development
regulations for each of these Sub-Areas that include use, density and height. The
regulations are intended to supplement the City of Santa Rosa’s existing Zoning
Code and Design Guidelines: any conditions not addressed are subject to Santa
Rosa’s existing policies. Existing land uses that are not consistent with the
regulations in the Land Use Framework are permitted to continue as legal
nonconforming uses.
4.
The DSASP created the following new policies: two new General Plan land use
designations (Transit Village Medium and Transit Village Mixed Use), identified
seven (7) distinct Sub-Areas, many new land use Goals and Policies, and new
Development Guidelines and Streetscape Standards. Adopted in 2007, these
new DSASP policies are not consistent with nor anticipated in the City’s Zoning
Code and Design Guidelines, which were adopted previously, in 2004 and 2002
respectfully.
5.
Chapter 8, Section B-1 of the Downtown Station Area Specific Plan stipulates the
need for amendments to Zoning Code and Design Guidelines as follows:
Following adoption of the Specific Plan, the City will identify and coordinate
changes to existing regulatory documents necessary to implement the vision and
policies of the plan. These tasks are anticipated to be conducted by City staff
with consultant assistance as necessary.
The Transit and Parking Department is currently in the process of updating the
Bicycle and Pedestrian Masterplan. As such, the scope of this work plan is
focused only on amendments to the Zoning Code and the Design Guidelines.
IMPLEMENTATION OF THE DSASP
1.
The DSASP guides the transition to higher density, pedestrian and transitoriented development in the built environment of the core downtown areas of
Santa Rosa.
2.
Chapter 8 (Implementation & Financing) in the DSASP outlines specific action
items necessary for the successful implementation of the Specific Plan. These
action items are listed in priority order in DSASP Table 8-4 and Table 8-5
(attached), and categorized into short- (0 to 5 years), medium- (5 to 1o years)
and long-range (10+ years) timeframes. Action items cover both regulatory and
physical steps, span over 10 years or more in implementation timeframes and
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May 12, 2009 City Council Meeting
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reflect an estimated cost of about $50 Million, with many costs still to be
determined.
3.
DSASP Table 8-4 and 8-5 identifies six (6) action items targeted for short-term
implementation (0 to 5 years):
a)
b)
c)
d)
e)
f)
Zoning Code/Design Guidelines/Ped + Bike Plan Amendments
Street Tree Types/Streetscape “Palette” Development
Sixth Street Underpass
Sebastopol Road Corridor Improvements
Prince Gateway Park
Reunification of Courthouse Square
Attached to this report is a summary table (Short-term Implementation Action
Items) which provides a description of the above noted short-term action items,
their current status, and the Department(s) involved with the task.
4.
The number one ranked regulatory short-term action item is to achieve technical
consistency between the Zoning Code, Design Guidelines, the Pedestrian &
Bicycle Master Plan and the DSASP. This action item as it relates to the Zoning
Code and Design Guidelines is the subject of this work plan which will be led by
Community Development. Transit & Parking is currently working on the
Pedestrian & Bicycle Master Plan Update.
5.
Technical consistency between the Zoning Code, Design Guidelines, and the
DSASP is necessary to facilitate an efficient and effective development review
process in the Core Area.
6.
Chapter 8 in the DSASP also includes a Financing Action Plan for implementing
the various public infrastructural improvements that are needed or desired within
the plan area. Certain improvements are assumed to be completed by the
private sector as part of individual development projects. Other financing
mechanisms identified include the City’s Capital Improvement Program (CIP),
adjustment of development impact fees, tax increment financing. Potential Citywide based funding sources were also identified, and include a general obligation
bond package, grants and foundation funding, and public/private partnerships.
7.
The certified DSASP Environmental Impact Report (EIR) ensures that the
desired development types and patterns envisioned in the DSASP will not
significantly impact the environment.
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Downtown Station Area Specific Plan (DSASP) Consistency Amendments & Rezonings Work Plan
May 12, 2009 City Council Meeting
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WORK PLAN
1.
The intended outcomes of the subject Work Plan are as follows:
a) Technical consistency is achieved between the General Plan, Downtown
Station Area Specific Plan (DSASP), Zoning Code and Design Guidelines
b) Policy documents establish clear expectations among various stakeholders
c) Properties within DSASP area are zoned consistent with the General Plan
d) Proposals consistent with the DSASP vision are easy to implement
2.
The Downtown Station Area Specific Plan (DSASP) directs that the City identify
and coordinate amendments to the Zoning Code and Design Guidelines as
needed to implement the vision and policies of the plan. Specifically the Plan
requires these policy documents to be updated as a short term goal.
3.
The consistency amendments suggested in this work plan will achieve technical
consistency between policy documents.
4.
The boundaries of the DSASP encompass 10 General Plan land use
designations, 15 base Zoning Districts, several areas and sites with a Historic
(-H) Combining District, and 12 Planned Development (PD) Districts. Further,
the land uses represented in the area range widely from industrial to commercial
to residential to public institutional.
5.
The first step will be to review the seven Sub-Areas in detail to determine the
appropriate methods and amendments to the Zoning Code and Design
Guidelines needed to implement the Downtown Station Area Specific Plan.
6.
Staff anticipates a substantial effort with regards to the various methods and
amendments needed to address consistency gaps with the Zoning Code. For
example, while some existing Zoning Districts, such as the Downtown
Commercial (CD) District, will likely require only minor amendments to be
consistent with the DSASP, other Districts such as the General Commercial (CG)
or Planned Development (PD) Districts may require major amendments. Other
policies or areas in the DSASP, however may be best implemented by creating
new base Districts or new Combining Districts. Other sections of the Zoning
Code may also require consistency amendments, such as Chapters 20-36
(Parking) and 20-61 (Non-Conforming Uses, Structures and Parcels). Under any
scenario, staff anticipates the need for substantial analysis and broad public
communication.
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7.
A common Zoning District in the DSASP boundary is the Planned Development
(PD) District. Amendments to the Policy Statements for these PD Districts may
be necessary to achieve consistency. Perhaps visionary when they were initially
adopted, these Districts may now have little to no relationship to the DSASP.
On the other hand, each PD District is representative of the unique
characteristics of these individual neighborhoods, and that unique quality
warrants protection. Creating consistency between the PD Districts and the
DSASP, may therefore be a sensitive issue that generates substantial public
comment.
8.
The following is a list of the Planned Developments located within the boundaries
of the DSASP:
•
•
•
•
•
•
•
•
•
•
•
•
PD 0081 (Westside Neighborhood)
PD 0208 (315 West Third Street)
PD 0226 (Junior College Neighborhood)
PD 0321 (Hoag House)
PD 0323 (610 Davis)
PD 0325 (Apple Creek Condominiums)
PD 0332 (Sixth Street West)
PD 0377 (Franco American)
PD 0398 (North Railroad Square)
PD 0442 (Railroad Square)
PD 91-001 (Oliver Parcel Map)
PD (St. Rose)
9.
Rezoning of individual properties to Zoning Districts consistent with the General
Plan and DSASP will also be conducted as part of this work plan. The purpose
of the work plan is not only to bring the City’s Zoning Code and Design
Guidelines into consistency, but to bring the Zoning of all properties within the
DSASP boundary into consistency. Rezoning of individual properties through
this project is anticipated to be a major incentive for private sector investment in
the downtown by eliminating what is currently a fundamental regulatory and
financial barrier. Rezoning currently requires approximately $8900 in fees and
requires a public hearing with both the Planning Commission and the City
Council. Further, Rezoning properties in advance through this work plan will
expedite permit applications, thereby expediting implementation of the DSASP.
10.
Amendment to the Design Guidelines will also be reviewed as part of this work
plan. Considerations for possible consistency amendments will include: Section
3 (Residential and Commercial), Section 2 (Core Area), and Section 4 (Special
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Downtown Station Area Specific Plan (DSASP) Consistency Amendments & Rezonings Work Plan
May 12, 2009 City Council Meeting
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Considerations). Amendments to Section 1.2 (Streets and Public Ways) may
also be needed to address the Streetscape Standards of the DSASP.
11.
No physical development is proposed with this project. As such, the DSASP
Environmental Impact Report (EIR) will be utilized as the CEQA clearance
document for this consistency amendment project.
12.
Staff will provide property owners and associated neighborhood and interest
groups within the DSASP area advanced notice of the proposed consistency
amendments. Neighborhood meetings for the seven Sub-areas will be held to
provide adequate opportunities for the public to learn and ask questions about
the project. Staff expects some changes to the proposed implementation based
on the results of the public outreach efforts. These changes will be incorporated,
as appropriate, into the final proposal brought forward to the City Council.
13.
Consistency Amendments to the Zoning Code and associated public comments
will be considered by the Planning Commission at a public hearing for a
recommendation to the City Council.
14.
Consistency Amendments to the Design Guidelines and associated public
comments will be considered by the Design Review Board at a public hearing for
a recommendation to the City Council.
15.
Consistency Amendments to both Zoning Code and Design Guidelines will be
considered at a public hearing by the City Council, seeking formal action on the
amendments by ordinance.
RESOURCES NEEDED
Community Development has the expertise and interest in implementing the above
described work plan, however implementation will require resources not currently
budgeted for this project. Should the Council wish to implement the project, the Council
should accept the work plan, and authorize the allocation of current Development
Review staff resources (1 FTE City Planner and 0.4 FTE Supervising Planner for 8
months) and $5,000 in preparation and publication costs, to this year long project.
Allocating current Development Review staff over the course of a year period will
temporarily reduce service levels in this section.
RECOMMENDATION
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May 12, 2009 City Council Meeting
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It is recommended by Community Development that the Council, by motion, accept the
proposed the Downtown Station Area Specific Plan (DSASP) Consistency Amendments
and Rezonings Work Plan, and authorize Community Development to conduct the work
utilizing existing staff resources.
Authors: Clare Hartman, Supervising Planner; Noah Housh, City Planner; and Bill
Rose, Senior Planner
Attachments:
•
•
•
•
•
•
DSASP Figure 4-1 (Land Use Framework Sub-Areas)
DSASP Figure 4-2 (Land Use Designations for the Plan Area)
DSASP Table 8-4 (Regulatory and Program Steps)
DSASP Table 8-5 (Physical Implementation Steps)
Short-term Implementation Action Items
Tasks and Schedule
DSASP Consistency Amendments & Rezonings Work Plan.sr.doc